Bullying and cyberbullying demand stronger, enforceable EU education policies

The European Union is stepping up efforts to confront bullying and cyberbullying in schools, but a new study warns that fragmented policies and limited legal enforceability are holding back progress. The research published in Social Sciences provides a detailed analysis of 16 EU policy documents. 

Titled "The European Union’s Response to Bullying and Cyberbullying: An Educational Policy Analysis," the study reveals how current frameworks lean heavily on soft law, leaving critical gaps in addressing one of the most pressing issues affecting students across the continent.

By examining official EU policies and legal instruments from EUR-Lex, the authors dissected the legal and operational dimensions of anti-bullying measures, mapping how these policies are designed, implemented, and monitored across Member States. Their findings raise important questions about how the EU can move from broad recommendations to concrete, enforceable strategies capable of keeping pace with the growing threat of online and offline harassment.

Fragmented legal framework and policy oversight

The study found the predominance of soft law in the EU’s response to bullying and cyberbullying. According to the analysis, approximately 60 percent of the policy documents take the form of non-binding recommendations, while binding legal instruments such as regulations and directives make up a far smaller share. This imbalance leaves much of the enforcement burden on individual Member States, resulting in uneven policy implementation and varying levels of protection for students across the region.

The study also highlights the institutional roles in shaping these policies. The Council of the European Union is responsible for the majority of the documents analyzed, accounting for nearly 60 percent of the initiatives, while the European Parliament and the European Commission contribute smaller but still significant portions. Policy activity has surged in recent years, particularly after the COVID-19 pandemic accelerated the use of digital platforms and exposed vulnerabilities in online spaces where students interact.

Despite the increased attention, the researchers note that only one policy directly addresses bullying as its primary focus. Most documents reference bullying and cyberbullying within broader strategies tied to digitalization, inclusive education, or children’s rights. This diluted approach, the authors argue, prevents the development of targeted, enforceable frameworks that could standardize preventive and protective measures across the bloc.

Digital threats and intersectional vulnerabilities

The digital transformation of education and social life has magnified the reach and intensity of bullying. The study identifies a significant policy gap when it comes to cyberbullying, noting that references to digital harassment are less frequent and often less detailed than those concerning traditional forms of bullying. This oversight is particularly concerning given the rise of online platforms, social media use among minors, and the recent challenges posed by generative AI technologies.

Importantly, the paper emphasizes the intersectional nature of vulnerability in bullying cases. Students from marginalized groups, including girls, LGBTQ+ youth, students with disabilities, Roma communities, and children from low-income families, are disproportionately targeted. EU policy documents frequently acknowledge these risk factors, framing inclusion and equity as central components of the fight against bullying.

However, the study warns that identifying at-risk populations is only the first step. Without structured, evidence-based intervention strategies, schools often lack the tools needed to effectively support victims, engage with aggressors, and foster safer learning environments. The researchers argue that comprehensive teacher training and the integration of social and emotional learning into school curricula are essential to bridging this gap.

Building stronger and more enforceable solutions

Going ahead, the authors outline a series of recommendations to strengthen the EU’s response to bullying and cyberbullying. They call for greater reliance on binding legal instruments, such as directives that Member States must adapt and enforce. This shift, they argue, would ensure more consistent protections across jurisdictions and provide a clearer mandate for schools and local authorities.

The study points out the need for enhanced digital literacy programs that equip students, parents, and educators with the skills needed to navigate online spaces safely. By fostering awareness of digital risks, these initiatives could mitigate the spread of harmful behaviors, from cyberbullying to the manipulation of generative AI tools for harassment.

Another key recommendation is the promotion of whole-school approaches that integrate families, healthcare providers, community organizations, and digital platforms in coordinated anti-bullying strategies. The inclusion of student voices in the design and evaluation of these programs is seen as a vital step toward creating responsive and sustainable policies.

Monitoring and evaluation also emerge as critical priorities. The authors note that while some EU policies recommend periodic assessments, there is no binding requirement for systematic evaluation of anti-bullying measures. Establishing mandatory, evidence-based monitoring mechanisms would enable policymakers to track progress, identify gaps, and adapt interventions in real time.